TABLE OF CONTENTS

Executive Summary...... I

Introduction...... 1

Existing Conditions...... 5 Physical Conditions...... 5 Economic Conditions...... 11 Transportation...... 15 Development Activity and Planning Initiatives...... 21

Opportunities and Issues...... 24 Opportunities...... 24 Issues...... 26

Development Framework...... 29 Land Use and Density...... 33 Urban Design and Open Space...... 38 Transportation...... 45

Implementation Strategy...... 57 Special Purpose Zoning District...... 57 Zoning Map Changes...... 58 Specific Infrastructure Improvements...... 58 Financing Strategies...... 60 Implementation Steps...... 62

i LIST OF TABLES

Table 1: Land Uses...... 7 Table 2: Floor Area Ratios (FAR)...... 9 Table 3: 1991 & 1997 Jobs...... 13 Table 4: Multi-Use Facility Alternative...... 34 Table 5: Office-Use Alternative...... 34 Table 6: Summary of Land Use and Density Recommendations...... 37 Table 7: Subway Stations Requiring Improvement Measures...... 49 Table 8: Bus Lines Affected by Development Alternatives...... 50 Table 9: Required Parking Spaces for Development Alternatives...... 53 Table 10: Avenue Sidewalk Recommendations...... 55 Table 11: Street Sidewalk Recommendations...... 56

ii LIST OF FIGURES

Figure 1: Areawide Context...... 2 Figure 2: Existing Zoning...... 4 Figure 3: Primary Land Use...... 6 Figure 4: Existing Floor Area Ratio (FAR)...... 10 Figure 5: Ownership...... 12 Figure 6: 1997 Jobs (by block)...... 14 Figure 7: 1997 Jobs - East and West of Ninth Avenue...... 15 Figure 8: Existing Transportation Infrastructure...... 16 Figure 9: Parking and Bus Storage...... 20 Figure 10: Development Activity and Planning Initiatives...... 22 Figure 11: Conceptual Development Framework...... 30 Figure 12: Proposed Land Use and Density...... 32 Figure 13: Areawide Open Space...... 40 Figure 14: Superblock and 34th Street Open Space...... 41 Figure 15: Eleventh Avenue Looking North...... 42 Figure 16: Midblock Open Space...... 44 Figure 17: Large Scale System Improvements...... 46 Figure 18: Proposed Traffic Improvement Measures, Office-Use Alternative...... 52 Figure 19: Proposed Sidewalk Improvement Measures, Multi-Use Facility Alternative...... 54

iii Executive Summary

EXECUTIVE SUMMARY

Far West Midtown Today The redevelopment of Far West Midtown offers an Far West Midtown covers an area of 59 blocks. On its eastern extraordinary opportunity to meet the City's need for an edge are some of the City and region's best transportation expanded central business district. Together with the infrastructure including Pennsylvania Station, the Port reconstruction of Lower Manhattan, the redevelopment of Far Authority Bus Terminal, and Eighth Avenue subway lines, as West Midtown would provide the expansion space the City's well as large commercial uses, including Madison Square prime office users will need as the City's economy rebounds, Garden, the Penn Plaza office buildings, and major Post spreading economic benefits throughout the City and region. Office facilities. West of Ninth Avenue, the area exists today With proper planning and investment, Far West Midtown largely as a diverse collection of monumental structures, would be a transit-oriented, pedestrian-friendly urban central railway lines, the MTA Rail Yards, approaches for the Lincoln business district, with office, hotel, entertainment, exhibition, Tunnel, low-rise industrial buildings, and open lots used for and retail space that would be accessible to, and integrated parking and bus storage. The Javits Convention Center sits with Midtown, while strengthening the City's tax base and isolated at the extreme western edge. Apartment buildings are providing new housing and public parks in an significant along West 42nd Street and the 34th Street corridor environmentally beneficial manner. Moreover, the value that east of Tenth Avenue, and tenement buildings interspersed would be created by the redevelopment of Far West Midtown, with parking lots predominate on Ninth Avenue and the and the tax revenues it would generate, would permit the midblocks to the west. Overall, though, the area has a financing of the needed public investment without impinging relatively low residential density, with approximately 6,300 on public funds needed elsewhere in the City. residences, only 150 of which are west of Tenth Avenue and south of West 41st Street. This Framework establishes a plan for the revitalization, over the next two decades, of this critical but long-neglected area Intended to reflect the area's historic role as a warehouse, of Manhattan, through areawide infrastructure investments supply and distribution center for moving goods from the and zoning changes that reflect the growth potential of the west side waterfront to the rest of the City, the predominant area, and through innovative strategies for financing and low- and medium-density manufacturing zoning west of implementation. An extension of the Number 7 Subway line Ninth Avenue remains largely unchanged since it was first put to Far West Midtown, the first subway construction since the in place over 40 years ago. This outdated zoning, coupled 1930's intended specifically to open new areas to with poor mass transit and commuter rail access in the development, is the key to ensuring that the area's western portion of the area, has contributed to the area's infrastructure supports the projected new development. economic stagnation.

I Executive Summary

42nd Street

Potential High Density Expansion Area Office Core Existing New Ferry Special Terminal District Neighborhood at 38th Street Open Space Future HudsonRiverPark Higher Density Javits Convention Mixed-Use Center Neighborhood

34th Street #7 Subway Line Extension Pedestrian Connection Open Space Network Pedestrian Circulation High Density Commercial Spine

30th Street

Transition Area

28h Street

11th Avenue 10th Avenue 9th Avenue 8th Avenue 7th Avenue 24th Street

Conceptual Development Framework

II Executive Summary

Issues and Opportunities transit access that would connect Midtown to a revitalized To remain competitive in the world marketplace, the City waterfront, and provide sorely needed neighborhood and needs to provide for office growth and development. Even regional open space. New housing can be integrated into the before the City lost over 13 million square feet of office space area and help alleviate the chronic housing shortage in in the September 11 attack on Lower Manhattan, land was Manhattan. Far West Midtown also presents an opportunity needed to add an estimated 60 million square feet of office to transform what has been for decades a transitional area space in Manhattan over the next 20 years. In addition, the without a strongly defined urban character or open space of City has an opportunity to accommodate new sports and any significance. entertainment facilities, create new housing and open space, and expand the Javits Convention Center facilities. Far West The area also presents considerable planning challenges that Midtown provides a unique opportunity to meet these future must be addressed as part of a comprehensive plan. While the demands, making the world's greatest city even greater, and ability to provide additional public transit service is critical finally realizing the untapped potential envisioned in building for creating and sustaining significant new development, the Javits Convention Center. future plans must also address traffic congestion around the approaches to the Lincoln Tunnel, ensure safe and easy The area is contiguous with Midtown's western border and is pedestrian circulation throughout the area, and accommodate the only large, underutilized area where Midtown can expand necessary parking and vehicle storage facilities as they are without encroaching on densely built-up residential displaced by redevelopment. communities. In addition to rebuilding Lower Manhattan, providing for the expansion of Midtown represents the best Framework for Development opportunity to meet the City's long-term need to develop The Framework designates six distinct areas within Far West office space to serve as headquarters for financial and Midtown, each with its own unique characteristics, for advanced business services firms. The planned extension of redevelopment at different densities and mix of uses. These the Number 7 Subway line will ensure that all of these six areas would be knitted together through a combination of opportunities connect with the City and region's new open space, urban design controls, and streetscape transportation network, providing direct access to improvements to create a strong definition for the area. Under Pennsylvania Station, the Port Authority Bus Terminal, Grand today's zoning, only seven million square feet of new Central Station and all of Midtown's north-south subway development is projected over the next 20 years. In lines. With the appropriate infrastructure investments, the conjunction with new transportation facilities, over the next City can create a Central Business District (CBD) 20 years the area would be transformed with up to 30 to 40 environment designed with 21st century sensibilities in mind: million square feet of new offices, hotels, housing, and environmentally sustainable with convenient and seamless expanded exhibition and sports facilities, as well as new and

III Executive Summary improved neighborhood and regional open space with direct Tenth to Eleventh Avenue Corridor: High Density pedestrian connections to the Hudson River Park. Office Core This area is envisioned as the second leg of a high-density Superblock and 34th Street Corridor: High Density commercial office core with new open space serving the Commercial Spine Javits Convention Center and office workers. Together with Extending from the existing Pennsylvania Station west to the the new commercial spine formed by the superblock corridor, Javits Convention Center and Route 9A, generally between these areas would help realize the potential envisioned for the West 30th and West 35th streets, this corridor presents one of area at the time the Javits Convention Center was built. The the best opportunities for large scale development due to its absence of significant residential uses between Tenth and central location, the presence of the large sites created by the Eleventh Avenues and the large amount of vacant and superblocks and MTA Rail Yards, and the extension of the underutilized land would facilitate the assemblage of Number 7 Subway line. development parcels to accommodate large-scale development. Up to eight million square feet of office and This corridor would be the commercial spine of Far West hotel development at 15.0 FAR are projected to be built in this Midtown, tying the area to Midtown Manhattan and a newly area over the next 20 years. developed commercial center across from the Javits Convention Center. This commercial spine could As the front door to the Javits Convention Center, the accommodate about 25 million square feet of new development of the Eleventh Avenue blockfronts would be a development over the next 20 years. The superblock between strong defining point of the area. A variety of building types Eleventh Avenue and Route 9A could be the location of a with ground floor retail and other active uses would enliven a multi-use sports and exhibition facility, as proposed by the newly landscaped tree-lined corridor, and the Javits Plaza at NYC 2012 Olympics organizing committee, providing a West 35th Street across from the Javits Convention Center stadium for the Olympics, if the City's bid is successful, and would be expanded and redesigned with greenery. A potentially the New York Jets, as well as additional space for midblock promenade extending north from the new regional the Javits Convention Center. If no stadium is built, the open space atop the MTA Rail Yards to West 39th Street would superblock could accommodate additional commercial space. provide the relief of green spaces in a dense urban environment. This promenade would be enlivened through New regional open space would be a precondition for outdoor cafes, seating areas, wide pedestrian paths and development atop the MTA Rail Yards. This new park would landscaping. be reached by a green pedestrian corridor extending from Midtown along West 33rd Street, which would continue across Route 9A to the new Hudson River Park.

IV Executive Summary

Ninth to Tenth Avenue Corridor: Mixed-Use office development on infill lots. Neighborhood This mixed-use area already contains 1,700 housing units Convention Center Area: Potential Expansion Area along Ninth Avenue and on the midblocks to the west. The Extending north from the existing Javits Convention Center, plan removes the prohibition on residential development west the manufacturing zoning would be retained to allow for the of Ninth Avenue and encourages new mixed-use development expansion of the Javits Convention Center or for additional and neighborhood open space to strengthen the residential CBD support uses. The Javits Convention Center recently community and provide an appropriate transition to the purchased the block to its immediate north in anticipation of proposed high density office uses to the west. This area expansion. Expansion as far north as West 41st Street, which would also be enhanced by decking over portions of the would require the relocation of the MTA West Side Bus Lincoln Tunnel Expressway to create neighborhood parks Depot, could remake the Javits Convention Center into a with playgrounds and recreation facilities to serve local world class venue for exhibitions, and fulfill its role as an residents. important draw in a revitalized Far West Midtown. As noted above, the Javits Convention Center could also expand to the 28th to 30th Street: Transition Area south as part of a multi-use exhibition and entertainment This area contains low-intensity industrial, commercial, and facility. arts-related uses. The plan proposes a modest increase in permitted density and a continued prohibition on new Transportation Improvements residential development, to accommodate CBD support uses To help realize the vision for Far West Midtown, the and provide a transition between future high-density uses to Framework lays out a comprehensive program of the north on the MTA Rail Yards, and continued moderate transportation improvements. While the most critical intensity uses to the south in Chelsea. component is the extension of the Number 7 Subway line, a number of physical improvements at existing subway Garment Center Area: Existing Special District at Higher stations, such as new entrances, stairway widenings and Density platform construction, are recommended to accommodate the This portion of the Garment Center, the midblocks between expected increase in subway riders. More frequent bus Eighth and Ninth avenues from West 35th to West 41st streets, service would also be required. contains a mix of loft buildings with garment-related uses predominating, and parking lots. The plan retains the Special A number of physical improvements and traffic operation Garment Center District, while increasing the permitted measures are also identified to ensure that congestion issues density from 5.0 to 10.0 FAR to better reflect the built are addressed in a coherent and rational way. Traffic flow and character of the existing industrial lofts and to encourage new pedestrian movement and safety would be improved through

V

VI 2nd Avenue 2nd 7 Subway Line Executive Summary

42nd Street

34th Street 24th Street 3rd Avenue 3rd

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1/9 2/3 7th Avenue 7th 1/9 2/3 ortation Infrastructure Improvements Potential Extension Station

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A C E Pennsylvania 7 Subway Line 8th Avenue 8th Farley Building

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P Pier 79 Pier Pier 64 Pier 66 Pier 72 Pier 76 Pier 81 Pier 83 Pier 78 Figure 20: Proposed Large Scale Transp Figure Proposed Large Scale System Improvements Proposed Executive Summary changes in signal timing, lane channelizations, signal phasing infrastructure improvements include new public open space and re-striping as part of a comprehensive program of traffic and waterfront access, replacement parking and bus storage operational improvements. Regulatory changes would facilities, and street, subway, and pedestrian improvements. modify parking regulations to provide additional capacity for Potential financing strategies would ameliorate the burden of moving vehicles, and physical improvements such as the these improvements on existing public agency capital widening of certain streets and new pedestrian circulation programs by creating a financial linkage between the spaces would also be provided. proposed zoning density increases in Far West Midtown and the provision of needed infrastructure. A new special zoning One of the consequences of redevelopment is the potential district with zoning map changes would incorporate new loss of spaces in public parking lots that serve existing density, use and urban design controls, as well as certain on- residents and businesses in the area and the CBD to the west. site amenities and a capital financing mechanism. While mass transit improvements will be paramount in Far West Midtown, the plan would replace and supplement Special Purpose Zoning District displaced spaces by requiring on-site parking as a component In conjunction with public discussions to refine the of new development. One or more off-street bus storage Framework for Far West Midtown, the Department would facilities are also proposed to replace the loss of bus storage draft new special district regulations to achieve development resulting from redevelopment of bus storage lots and the and urban design objectives; mandatory on-site improvements elimination of on-street bus parking. such as pedestrian circulation space and publicly accessible open space; streetscape improvements; special regulations Implementing the Plan concerning parking and loading; and required elements to be Several steps are proposed to immediately move forward and included in the redevelopment over the rail yards, such as make this plan a reality. Recognizing that the City, the MTA open space and pedestrian connections. Appropriate zoning and the Port Authority face constraints on their capital map changes would be proposed in conjunction with new budgets, which have been exacerbated by the events of special district controls. September 11, the implementation program incorporates innovative financing strategies to ensure that infrastructure Financing and Infrastructure Strategies improvements are financed and made as redevelopment Two potential financing strategies, which are not mutually proceeds. Of the major infrastructure elements identified in exclusive, are summarized below: the Framework, extension of the Number 7 Subway line is the most critical. The MTA and the Department of City Planning Tax Increment Financing will undertake a joint environmental review that will examine The City would propose state legislation permitting it to both the subway extension and the rezoning plan. Other key dedicate a portion of the incremental property taxes resulting

VII Executive Summary from development in the area to reimburse the debt service on Many of the steps for implementation can proceed bonds for capital improvements serving the area. This simultaneously. Environmental work for the Number 7 strategy involves designating a Far West Midtown Subway line extension, including route selection and Improvement District and developing a District Improvement preliminary engineering, and on proposed land use and Plan specifying infrastructure improvements to be funded. density changes, can begin immediately and could be completed in approximately three to four years. Public Zoning Bonus Strategy discussion on the Framework would take place over the next The Far West Midtown Improvement District would also be year. At the same time work can start on drafting new special designated and a District Improvement Plan developed. The zoning district regulations and evaluating financing special zoning district would permit the current base FAR as- proposals. Zoning changes would be considered for adoption of-right. Increased densities (zoning bonus) would be following completion of the EIS with completion of the permitted only in conjunction with a monetary contribution to Number 7 Subway line extension between 2009 and 2012. the district improvement fund, which would provide reimbursement for the plan's capital expenditures, support general obligation bonds, or fund capital expenditure directly.

Under both strategies, consideration should also be given to dedicating revenues from the sale of MTA and Port Authority development rights to capital expenditures supporting the District Plan.

VIII Introduction

INTRODUCTION change, it suffers from antiquated zoning and a lack of adequate transportation infrastructure which prevent the realization of the area’s full potential. Far West Midtown, the area generally located west of Eighth Avenue between West 42nd and West 24th streets, is This study was undertaken to investigate the opportunities for strategically located for expanding the Midtown Central land use change and future growth in conjunction with Business District, thereby providing for the future growth strategies to reinforce and expand mass transit and commuter needs of the City’s office economy. It is located adjacent to rail access in the area. The study analyzes transportation, Midtown and proximate to major transportation facilities, zoning, and infrastructure constraints, documents existing including the Port Authority Bus Terminal (PABT), land use and economic activity, and identifies land use and Pennsylvania Station, the Lincoln Tunnel, and the economic trends. Based on an assessment of critical issues Metropolitan Transportation Authority (MTA) John D. and opportunities, the study establishes both a framework for Caemmerer Rail Yards. This area also contains major the future development of the area and an implementation destination uses that include the Javits Convention Center and strategy. The study, completed prior to the attack on the Madison Square Garden. While the area is experiencing World Trade Center, assumes that the findings and development pressures and is poised for significant land use conclusions of the study remain valid.

Study Area from West 28th Street

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Existing Conditions

SEVENTH AVE SEVENTH

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London Terrace Apts

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H A T F L E W T Pier 79 Pier Pier 64 Pier 66 Pier 72 Pier 76 Pier 81 Pier 83 Pier 78 Figure 1: Areawide Context Introduction

This study focuses on a 59-block area bordered by West 24th and West 28th streets on the south, the Hudson River on the west, West 42nd Street on the north, and Seventh and Eighth avenues on the east. The study area lies almost entirely within Community District 4, except for the portion east of Eighth Avenue which is in Community District 5.

The eastern boundary incorporates the PABT, and Pennsylvania Station, Madison Square Garden (MSG) and the western portion of the Garment Center. To the west the boundary encompasses the Javits Convention Center and Hudson River Park which is under construction. The northern boundary overlaps the West 42nd Street Perimeter Area of the Special Clinton Preservation District, and the southern boundary at West 24th Street is coterminous with a Special Mixed Use District adopted in 1998 as part of the Chelsea Rezoning.

Funding for the study was provided by the New York Metropolitan Transportation Council. In addition to this document, a comprehensive transportation study, Far West Midtown Transportation Study, analyzed a larger study area. The findings of the Transportation Study are summarized within this report.

West of Tenth Avenue looking from West 26th Street

3 Existing Conditions

M2-3 M1-5 C6-5

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Pier 79 M1-5 Residential W 38TH ST W 38TH ST Pier 78 Javits Center C M1-5 M1-6 District 6

District W 37TH ST -

W 37TH ST C6-2A Garment Center 2 Pier 76 Javits DistrictDistrict Special District Center C6-4 W 36TH ST W 36TH ST C6-2 W 35TH ST M2-3 W 35TH ST C6-4 Study Area C6-4 C6-4 C6-2M W 34TH ST C6-4 W 34TH ST C5 Boundary One Penn Plaza C6-6

W 33RD ST W 33RD ST C6-4

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U.S.P.S. C6-4 W 28TH ST C6-2 W 27TH ST R8 Starrett Lehigh C4-5 C6-2A W 26TH ST W 26TH ST

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4 Existing Conditions

EXISTING CONDITIONS

The zoning remained substantially unchanged until the The Department of City Planning produced a comprehensive adoption of the 1961 Zoning Resolution, which mapped existing conditions report for the New York Metropolitan manufacturing districts in much of the area which was Transportation Council (NYMTC) in April 2000. That report unrestricted and the prior commercial and residential districts contained detailed information regarding zoning, land use, remained unchanged. There have been few zoning changes in built character, employment, and transportation. The the intervening 40 years, and the area – particularly west of following is a summary of the report’s key findings. Ninth Avenue – continues to remain predominantly low- and medium-density manufacturing districts. Several small areas have been rezoned to commercial districts, primarily along Physical Conditions West 42nd Street, Ninth Avenue, and across from the Javits Beginning as part of the marshy river banks of the Hudson Convention Center on Eleventh Avenue. River, this area on the western edge of Manhattan has undergone a succession of distinct transformations over the Currently, 70 percent of the lot area within the study area is last four hundred years. Developed into farm land in the zoned for manufacturing, 27 percent is commercially zoned, eighteenth-century and subsequently transformed into a and three percent is zoned residential. The major thriving freight yard in the mid-nineteenth-century, the study manufacturing designations, M1-5 and M2-3 with floor area area exists today as a diverse collection of monumental ratios (FARs) of 5.0 and 2.0 respectively are located primarily structures, railway lines, storage yards, and approaches for the west of Ninth Avenue. Commercial designations vary, but Lincoln Tunnel. C6-2 and C6-4 with FARs of 6.0 and 10.0 respectively are the predominant commercial districts. The only residential Zoning district is R8B with a FAR of 4.0, which is located at the New York City’s first zoning regulations in 1916 delineated southern portion of the study area in Chelsea . three use groups: business, residential, and unrestricted. The study area was zoned predominantly unrestricted with the The allowable FARs within the study area generally increase majority of the area occupied by industrial uses, such as from 2.0 FAR along the Hudson River to 5.0 FAR at Eleventh th freight distribution, lumberyards, warehouses, and rail yards. Avenue, and 10.0 FAR east of Ninth Avenue along West 34 Several blocks around Pennsylvania Station and directly to its Street. A portion of the Special Garment Center District, th north were designated as business districts. Below West 30th located between Eighth and Ninth avenues from West 35 to th Street between Eighth and Ninth avenues was the only zoned West 41 streets, is zoned M1-5 and does not conform to this nd residential district. general trend. Other exceptions to this trend are the West 42

5 Existing Conditions

Commercial

Residential

Transportation

Industrial

Institutional

Parking

Open Space

Source: Field Survey January 2000 Figure 3: Primary Land Use

6 Existing Conditions

Street corridor, the Jacob K. Javits Special District along Commercial uses are the most predominant both east and west Eleventh Avenue, and the M1-6 areas adjacent to Route 9A at of Ninth Avenue and occupy a total of 4.2 million square feet West 29th Street and on the superblock between Ninth and of lot area. Much of this lot area, though, can be attributed to Tenth avenues and West 31st and West 33rd streets. These large uses such as the Javits Convention Center, Post Office areas allow a base FAR of 10. buildings, Madison Square Garden, and the Penn Plaza buildings. Besides some of these large uses, the major There are four special zoning districts that are wholly or concentration of commercial uses are located east of Ninth partially within the study area: Avenue and centered around Madison Square Garden and Pennsylvania Station. West of Ninth Avenue, there has been The Special Jacob K. Javits District was adopted in 1986 to an influx of commercial and arts-related uses south of West promote development across from the Javits Convention 28th Street between Tenth and Twelfth avenues where there is Center between West 34th and West 39th streets. It imposes a concentration of mid-rise loft buildings. The Starrett Lehigh specific urban design controls, including a mandatory building, which covers a full block and contains 1.8 million through-block pedestrian way from West 34th to West 37th square feet of floor area, has been converted to predominantly streets approximately 200 feet east of Eleventh Avenue. commercial uses over the last few years, signifying the broader shift from industrial to commercial uses in the The portion of the Special Garment Center District within the southern part of the study area. study area is located between Eighth and Ninth Avenues from West 35th to West 40th streets. The district includes midblock Table 1: Land Uses preservation areas for garment related manufacturing where West of Ninth* East of Ninth conversions to office use are restricted. Land Use Lot Area % Lot Area % Commercial 2,592,167 32% 1,647,839 49% The other two special districts, the Special Clinton District Transportation/Utility 2,387,337 29% 301,422 9% and the Special Midtown District, are located at the periphery Industrial/Manufacturing 1,289,620 16% 393,629 12% of the study area. Parking/Vehicle Storage 1,102,950 14% 271,677 8% Residential 450,592 6% 600,173 18% Primary Land Use Institutional/Public Facility 229,722 3% 144,771 4% The land uses in the study area are mainly commercial, Open Space 49,375 1% 0 0% transportation, industrial, parking and residential. Public Vacant Land 18,694 0% 12,442 0% facilities, open space, and vacant land in comparison Total 8,120,457 100% 3,371,953 100% comprise very few of the uses within this area. Source: 1999 RPAD Data, 1999 Field Survey *Does not include waterfront lots

7 Existing Conditions

Transportation and utility uses are significant west of Ninth Parking and vehicle storage uses account for 1.4 million Avenue, accounting for nearly 2.4 million square feet of lot square feet of lot area. These uses are primarily surface level area. The Lincoln Tunnel and its access ramps, as well as the parking lots located west of Ninth Avenue in the vicinity of MTA Rail Yards and other railroad cuts, account for the the Javits Convention Center. Surface level parking lots east majority of the lot area within this land use category. The of Ninth Avenue are located primarily within the Garment MTA Rail Yards extend both east and west of Eleventh Center. Avenue between West 30th and West 33rd streets with each encompassing roughly 13 acres. In addition, an open rail cut There are approximately 6,300 residential units throughout leading to the yards between Ninth and Tenth avenues is just the study area. Major concentrations of residences include the over 5 acres. area south of West 30th Street between Eighth and Ninth avenues, the West 42nd Street corridor with recent high-rise Other significant transportation and utility uses include the construction, an area of tenement buildings from Ninth to Consolidated Edison sites, on a full block site at Twelfth Tenth avenues between West 35th and West 41st streets, and Avenue and West 29th Street and on West 41st Street between the West 34th Street corridor east of Tenth Avenue, which Tenth and Eleventh avenues, and the full-block MTA West contains a number of large, pre-1961 apartment buildings. Side Bus Depot located between Eleventh and Twelfth There is little housing – only 150 units in 19 buildings – west avenues and West 40th and West 41st streets. The major of Tenth Avenue from West 24th Street north to West 41st transportation uses east of Ninth Avenue are the Port Street. A number of significant residential projects have been Authority Bus Terminal at West 42nd Street and Eighth completed or are under construction along the West 42nd Avenue, and the below-grade Pennsylvania Station between Street corridor, and on West 34th Street between Eighth and Seventh and Eighth avenues, as well as under a portion of the Ninth avenues. The River Place development, located on the Farley Building. south side of West 42nd Street between Eleventh and Twelfth avenues will contain approximately 1,800 units when Industrial uses, accounting for approximately 1.7 million completed. square feet of lot area, are concentrated in three general areas. A significant amount of apparel-related uses exist east of There are few institutional or public facilities within the study Ninth Avenue within the Special Garment Center District. area. These consist primarily of religious institutions, and fire Auto-related and storage uses are concentrated between Tenth and police stations. While there is almost no vacant land and Eleventh avenues across from the Javits Convention within the study area, there is a significant amount of land Center and in the area south of West 30th Street. without major improvements used primarily for parking and storage.

8 Existing Conditions

The major open space in the area is the planned Hudson River Built Character Park that will extend from Battery Park to West 59th Street, The study area is predominantly organized along Manhattan’s where it will connect with Riverside South Park and Riverside grid of streets and avenues creating the typical 200-foot by Park. The portion of the park within the study area 800-foot blocks. Although most of the blocks conform to the corresponds to Segment Six of the Hudson River Park Plan, street grid, a series of superblocks extend from Seventh which runs from West 25th Street to West 42nd Street. Through Avenue to the Hudson River along the south side of West 33rd much of the study area, the new park will consist of bikeways, Street. These superblocks are a consequence of the railroad walkways, and linear lawns. An esplanade linking green network that links the MTA Rail Yards with Pennsylvania passive sitting and recreation areas, would connect to the Station. The superblocks also extend from West 34th Street to north and south of Segment Six. The southern portion of this West 39th Street between Eleventh and Twelfth avenues due to segment will connect to the Park’s largest open space area, the Javits Convention Center. In addition to the superblocks, Chelsea Waterside Park, located between West 22nd and West the other disruption to the regular street grid is caused by the 24th streets. Under the plan, West 30th, West 34th, and West Lincoln Tunnel access ramps. The Lincoln Tunnel and its 42nd streets are designated as major park entrances and will access ramps disrupt the block pattern between Ninth and include major plazas. Tenth avenues from West 30th Street to West 42nd Street.

Pier 66, located at West 26th Street, is designated as a public The character of the study area differs significantly from one pier with passive recreation space and a boat house. Pier 79, area to another. Though the Garment Center area, Madison just south of West 42nd Street, is planned for a rebuilt and Square Garden area, Javits Convention Center area, and the expanded ferry terminal with public access. Pier 76, located area south of West 28th Street are distinct, the greatest opposite the Javits Convention Center, is currently used as a tow pound and is also not part of Hudson River Park. If the Table 2: Floor Area Ratios (FAR) West of Ninth* East of Ninth tow pound vacates the pier, then half the pier would be FAR incorporated into the park and dedicated to open space use. Lot Area % Lot Area % East of Route 9A, the only permanent public open space is the No Building 3,012,773 37% 160,330 5% sitting plaza across from the Javits Center. Several small 0.1 - 3.0 1,732,143 21% 588,536 17% community parks have recently been created on Port 3.1 – 5.0 1,844,970 23% 479,263 14% Authority property, between Ninth and Tenth avenues, 5.1 – 10.0 1,263,524 16% 1,315,784 39% through an agreement with the community. In addition, 10.1 – 15.0 267,047 3% 547,825 16% privately owned public space is located at 1 and 2 Penn Plaza, 15.1 + 0 0% 280,215 8% and on the midblock between West 41st and West 42nd streets Total 8,120,457 100% 3,371,953 100% and Eleventh and Twelfth avenues. Source: 1999 RPAD Data *Does not include waterfront lots

9 Existing Conditions

E

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W 43RD ST

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N W 43RD ST

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I SEVENTH AVE

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Pier 83 E No Building

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T E W 42ND ST W 42ND ST

E W 41ST ST 0.1 – 3.0 V W 41ST ST Pier 81 A

H Port Authority

T

F MTA Bus Depot L W 40TH ST E W 40TH ST

W

T 3.1 – 5.0

W 39TH ST W 39TH ST Pier 79 W 38TH ST W 38TH ST 5.1 – 10.0 Pier 78 Javits

Convention W 37TH ST Center W 37TH ST Pier 76 10.1 – 15.0 W 36TH ST W 36TH ST

W 35TH ST W 35TH ST Above 15.1

W 34TH W 34TH ST ST Study Area One Penn Plaza Boundary W 33RD ST W 33RD ST

E Madison Square

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E

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A

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A E Farley E Garden

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V

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A

T A

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Pier 72 Post Office

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T

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H

H

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E

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I V Pennsylvania Station

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N

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I E

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L MTA Rail Yards MTA Rail Yards N

W T

E T W 31ST ST

W 30TH ST W 30TH ST Morgan Postal Facility

W 29TH ST W 29TH ST Morgan Annex

W 28TH ST

W 27TH ST Starrett Lehigh W 26TH ST W 26TH ST

Pier 66 E

V W 25TH ST

A W 25TH ST

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T U.S.P.S.

F L

E Facility W 24TH ST

Pier 64 W T

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I E N Source:

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T E City of New York RPAD Figure 4: Existing Floor Area Ratio (FAR)

10 Existing Conditions differences exist between the areas west and east of Ninth The largest of property owners, though, are public entities. Avenue. Among these owners are the MTA, the Port Authority, the New York Convention Center Development Corporation, and The area east of Ninth Avenue is characterized by relatively the Federal Government. New York City, on the other hand, small lots, tall buildings, and continuous streetwalls. The owns almost no land in the area. FARs in this area typically exceed 5.0 while many buildings are built in excess of 10.0. The height of these buildings, as The MTA owns 1.0 million square feet of property most of well as the concentration of buildings and active ground floor which is the MTA Rail Yards and the West Side Bus Depot. uses create a dense urban fabric. This area also conforms to The Port Authority owns 23 lots comprising 900,000 square the typical street grid, and is well integrated with Times feet. The lots primarily consist of ramps to the Lincoln Square and Midtown to the north and east. Tunnel, Dyer Avenue, and the PABT. The New York Convention Center Development Corporation owns the In contrast, the built character west of Ninth Avenue, property upon which the Javits Convention Center sits as well particularly north of West 33rd Street, is comprised primarily as the full blocks immediately north and south of the facility. of one- to three-story structures and unbuilt lots. The FARs in The Federal Government’s ownership in the area exceeds 1.0 this area are generally below 5.0. The lots west of Ninth million square feet, but is limited to U.S. Postal facilities such Avenue are generally larger, the streetwalls are not as the Farley Building, the Morgan Building and Annex, and continuous, and there are fewer ground floor retail uses. In a maintenance and storage facility. addition, large portions of the lots are below-grade. The parking and vehicle storage lots, one- and two-story structures, and below-grade railways and ramps create a gritty Economic Conditions area without a distinct built character. South of West 28th The economic analysis identified and examined trends in Street, some larger loft structures are interspersed with low- industrial and non-industrial business activity within the study scale uses. Many of these buildings have been, or are in the area from 1991 through 2000. The analysis from 1991 to process of, being converted from storage or industrial uses to 1997 was based on third quarter ES-202 data from the U.S. art galleries or commercial space. Department of Employment and Labor and the 2000 data on surveys by the Department of City Planning. ES-202 data Ownership provides data on private companies, but not on government The vast majority of the land in the study area is privately agencies. 1997 was the latest year for which ES-202 data was owned. Most of the privately owned properties are held by available. This analysis identified which industries grew, individual owners who own one or two properties. declined, or remained constant, leading to general conclusions about the area’s industrial and non-industrial sectors.

11 Existing Conditions

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T E W 42ND ST Private Lots W 42ND ST

E W 41ST ST V W 41ST ST Pier 81 A Javits Center

H Port Authority

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F MTA Bus Depot L W 40TH ST E W 40TH ST

W T MTA W 39TH ST W 39TH ST Pier 79 W 38TH ST W 38TH ST Pier 78 Javits Port Authority

Convention W 37TH ST Center W 37TH ST Pier 76 New York City W 36TH ST W 36TH ST

W 35TH ST W 35TH ST New York State

W 34TH W 34TH ST ST One Penn Plaza Federal

W 33RD ST W 33RD ST

E Madison Square

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A

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A E Farley E Garden

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H

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T A

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Pier 72 Post Office Study Area

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I V Pennsylvania Station

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I E

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L MTA Rail Yards MTA Rail Yards N W T Boundary

E T W 31ST ST

W 30TH ST W 30TH ST Morgan Postal Facility

W 29TH ST W 29TH ST Morgan Annex

W 28TH ST

W 27TH ST Starrett Lehigh W 26TH ST W 26TH ST

Pier 66 E

V W 25TH ST

A W 25TH ST

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T U.S.P.S.

F L

E Facility W 24TH ST

Pier 64 W T

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T E Department of Finance Figure 5: Ownership

12 Existing Conditions

1991 to 1997 Analysis commercial jobs (services, FIRE, retail trade, wholesale Traditionally, the study area possessed a strong industrial trade) within the Penn Plaza buildings and along Eighth base; however, during this seven-year period it was evident Avenue. Manufacturing jobs (apparel-related, printing and that more than half of the jobs were non-industrial. In publishing) were located in the Garment District between addition, the decline in industrial jobs, primarily Eighth and Ninth avenues from West 35th to West 40th streets. manufacturing, was offset by a significant increase in non- In addition, there were some manufacturing jobs within the industrial jobs, specifically commercial activities. Even with commercial area east of Eighth Avenue between West 31th and this increase, employment in the study area declined while it West 35th streets. grew overall in Manhattan. West of Ninth Avenue there were low-intensity auto-related, In 1991, there were 23,541 industrial-sector jobs in the study construction, manufacturing, and transportation firms. The area. These jobs were primarily within the manufacturing manufacturing and auto-related firms were between Tenth and sector, specifically fashion-related goods and printing and Eleventh avenues from West 25th to West 41st streets. South publishing. The non-industrial jobs in the study area totaled of West 28th Street between Tenth and Twelfth avenues there 37,244 during this same time. These jobs were concentrated Table 3: 1991 & 1997 Jobs in the services sector – business services, social services, amusement services – and financial sector. 1991 Jobs 1997 Jobs % Change Manhattan 1,718,823 1,776,170 3.3% The study area has followed Manhattan’s overall trend shifting from manufacturing to a services-based economy. In Total Study Area 60,785 59,004 -2.9% 1997 the number of industrial-sector jobs decreased to 20,757 Industrial 23,541 20,757 -11.8% in the study area. As in 1991, these workers were Construction 3,521 2,996 -14.9% concentrated in the manufacturing sector, specifically Manufacturing 11,164 9,573 -14.3% fashion-related goods and printing and publishing. The TCPU* 3,755 4,560 21.4% number of non-industrial jobs grew to a total of 38,247. Wholesale Trade 5,101 3,628 -28.9% These workers were primarily within the services sector such Nonindustrial 37,244 38,247 2.7% as business services and social services. Retail Trade 3,438 4,261 23.9% FIRE** 8,958 6,673 -25.5% Between 1991 and 1997, job growth in the study area lagged Services 24,682 26,893 9.0% behind Manhattan’s. During this time period, the job Nonclassifiable 166 420 153% concentration east and west of Ninth Avenue was significantly Source: ES-202 Data as compiled by the Department of City Planning different. East of Ninth Avenue there was a concentration of *Transportation, Communication, and Public Utilities **Finance, Insurance, and Real Estate

13 Existing Conditions

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T E W 42ND ST W 42ND ST

E W 41ST ST 251 - 500 V W 41ST ST Pier 81 A

H Port Authority

T

F MTA Bus Depot L W 40TH ST E W 40TH ST

W

T 501 – 1,000

W 39TH ST W 39TH ST Pier 79 W 38TH ST W 38TH ST 1,001 – 3,500 Pier 78 Javits

Convention W 37TH ST Center W 37TH ST Pier 76 3,501 – 8,000 W 36TH ST W 36TH ST

W 35TH ST W 35TH ST Not Available

W 34TH W 34TH ST ST One Penn Plaza Study Area

W 33RD ST W 33RD ST Boundary

E Madison Square

E

V

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A E Farley E Garden

A

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V

H

H

A

T A

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Pier 72 Post Office

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T

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I V Pennsylvania Station

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I E

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L MTA Rail Yards MTA Rail Yards N

W T

E T W 31ST ST

W 30TH ST W 30TH ST Morgan Postal Facility

W 29TH ST W 29TH ST Morgan Annex

W 28TH ST

W 27TH ST Starrett Lehigh W 26TH ST W 26TH ST

Pier 66 E

V W 25TH ST

A W 25TH ST

H

T U.S.P.S.

F L

E Facility W 24TH ST

Pier 64 W T

E

E

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V H D ST W 23R T

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T E Source: 1997 ES202 Data Figure 6: 1997 Jobs (per block)

14 Existing Conditions was a concentration of services-related uses (art galleries, telephone survey of manufacturing firms, and secondary restaurants, taxi garages). research materials. This analysis identified the trend of reusing large floor plate manufacturing buildings for new The services sector had the strongest growth within the study arts-related (studios, galleries) and computer businesses. For area reflecting the area’s transition to arts-related and example, the Starrett-Lehigh building originally built for commercial businesses. The printing industry is amongst the manufacturing uses was repositioned during the late 1990's last of the industrial uses within this area and these businesses into a high-technology commercial building. have been in decline, in part due to changes in the industry and due to the competition for space from other users. The primary areas of economic change were east of Ninth Avenue, specifically growth in office uses along the Eighth Avenue corridor. The area south of West 28th Street between Figure 7: 1997 Jobs - East and West of Ninth Avenue Tenth and Twelfth avenues also experienced growth as the employment sector shifted towards technology and arts- Construction related uses. West of Ninth Avenue and north of West 28th Manufacturing Street there has been little change in the economic conditions TCPU since 1997 due in part to the general lack of a significant Wholesale Trade number of larger loft buildings compared to other parts of the Retail Trade study area.

FIRE Services Transportation Nonclassifiable The study area contains a diverse network of transportation 0 5000 10000 15000 20000 25000 resources that serve Manhattan and the entire New York Jobs Metropolitan Region. Located in this area are three key East of 9th Ave West of 9th Ave pieces of transportation infrastructure: the Lincoln Tunnel, Source: ES-202 Data as compiled by the Department of City Planning Pennsylvania Station, and Port Authority Bus Terminal. These facilities provide automobile, rail, and bus access to 1997 to 2000 Analysis New York, New Jersey, and the entire Eastern Seaboard. Similar to the 1991 to 1997 analysis, this analysis indicated that the study area continued to grow as a services-based The transportation analysis examined a study area from West economy. Economic trends from the third quarter of 1997 to 23rd to West 54th streets from Sixth Avenue to Route 9A. 2000 were analyzed qualitatively and supported by a While the numbers in the following section reflect the data for

Figure 7: 1997 Jobs - East and West of Ninth Avenue 15 Existing Conditions

Passenger & Freight Rail MTA - Metro-North Railroad Connection to the North Lines

Amtrak Empire 1

1

1 Line to Albany 1

M M Subway Lines

Pier 83 - Circle Line Grand Existing Bus M42 M16 Central Lines M42 M42 42nd Stree Pier 81 - World Yacht 1/9 2/3 Port Authority A C E 4 5 6

2 MTA Bus Depot 4 Bus Term. M Q W NY Waterway B D F S N Subway Pier 78 C Ferry Terminal S Stations

6

2

1

4

M

M

/

/

1 1

4

2

4

1 1

3

4 Lincoln Tunnel

3

M M

M

M C M Entrances M34/M16 34th Street A C E 1/9 2/3 LIRR, Amtrak NJ Transit, Farley Pennsylvania Study Area Amtrak
Building Station LIRR
MTA - LIRR West Side Yards Transportation Facilities

West 30th St PATH VIP Heliport

24th Street 2dA 3rd Avenue 3rd 6th Avenue 6th 11th Avenue Park Avenue Park 9th Avenue 9th Avenue 8th 5th Avenue 5th 7th Avenue 7th 10th Avenue

Source: City of New York, DCP Figure 8: Existing Transportation Infrastructure

16 Existing Conditions the larger study area, the figures present only the area the area is Route 9A. Currently under reconstruction, Route included in this Framework. 9A will be an urban boulevard along the West Side of Manhattan connecting with Route 9 in Upstate New York. Vehicular Infrastructure The reconstruction project has been divided into seven The Lincoln Tunnel, its access ramps, and the Port Authority segments, with segment six generally corresponding to the Bus ramps are in the midst of the study area. As the major study area boundaries. Segment six provides a 120-foot gateway to Midtown Manhattan, the Lincoln Tunnel is roadway with four northbound lanes, three southbound lanes, plagued with traffic congestion which acutely impacts the parking on the northbound side, and a 30-foot median. West study area in the weekday evening. 34th and 42nd streets will provide two way access/outlets and allow both north and southbound entry to Route 9A. In The Lincoln Tunnel consists of three two-lane tubes, the last addition, West 24th, 27th, 29th, 33rd, and 41st streets provide of which was completed in 1957, connecting Manhattan with access to Route 9A and West 26th, 28th, 30th, 39th, and 40th New Jersey. The northern tube located at West 39th Street and streets provide outlets from Route 9A. Eleventh Avenue always operates in a westbound direction. The southern tube at West 38th Street and Tenth Avenue The street network in the study area is a grid composed operates in an eastbound direction only. The center tube, at primarily of one-way streets and avenues. The curb to curb West 39th Street and Tenth Avenue, is configured to allow widths of the major east-west streets, 34th and 42nd, vary from each lane to operate in either a westbound or eastbound 53 to 60 feet, while the widths of all other crosstown streets direction. During non-peak hours, the Tunnel operates with generally vary from 30 to 34 feet. In general, even-numbered three lanes in each direction, while in peak hours, the tubes streets serve eastbound traffic and odd-numbered streets serve are configured with four lanes in the peak direction and two westbound traffic, with 24th, 34th, and 42nd streets allowing lanes in the non-peak direction. The Port Authority indicates two way traffic. Avenues run north-south and are typically 60 that during peak periods all lanes of the Tunnel are at or above or 70 feet wide operating in one direction. Ninth and capacity. The capacity problem has caused the peak periods Eleventh avenue traffic flows are one-way southbound; to start earlier and last longer. During the weekday morning whereas, Eighth and Tenth avenues are both one-way peak period the Port Authority operates a 2 ½ mile exclusive northbound. bus lane (XBL) from the New Jersey Turnpike to the Lincoln Tunnel. Utilizing the XBL, commuter buses operate on a Most intersections in the study area are controlled by traffic dedicated route to the Tunnel avoiding regular rush hour signals on a 90 second cycle. The allocation of green time is traffic and significantly reducing travel time. generally 60 percent to the avenues, 35 percent to the streets, and 5 percent for clearance. The Department’s analysis Another regional element of transportation infrastructure in found that of the approximate 585 intersection approaches,

17 Existing Conditions only 32, 44, and 56 approaches during the AM, Midday, and connections to the N, R, S, 1, 2, 3, 7, and 9 trains at Seventh PM peak hours respectively operate at mid-level LOS D or Avenue. Subway service for the A, C, and E continues along worse. Eighth Avenue with stops at West 34th Street and West 23rd Street. Service for the 1, 2, 3, and 9 trains continues at the Transit Infrastructure West 34th Street and Seventh Avenue station. There is one Although the area is dominated by the presence of vehicular additional stop in the study area at West 28th and Seventh infrastructure, it is also home to some of the busiest transit Avenue that provides service to the 1 and 9 trains. facilities in the United States. Nevertheless, most of the study area lacks convenient mass transit access as all of the rail and The Port Authority Bus Terminal, built in 1950, replaced a bus facilities are located in the eastern portion of the study number of independently operated bus terminals which were area. scattered throughout Midtown Manhattan. It has been expanded twice; once in 1963, when an additional level was Pennsylvania Station, the busiest rail facility in the nation, added, and again in 1981, when the North Wing was with over 310,000 rail trips on an average weekday, provides completed. Its current location on the corner of Eighth regional and long distance train service, as well as subway Avenue and West 42nd Street is directly above the Eighth access to New York City. New Jersey Transit and Long Island Avenue subway station and conveniently linked by Rail Road (LIRR) trains provide regional service while underground passages to the Times Square subway station. Amtrak provides long distance service to Pennsylvania Three bus operating levels can berth 223 buses Station. Only one block away the Port Authority Trans- simultaneously at both island and sawtooth loading bays. Hudson (PATH) trains terminate at Herald Square providing Based on Port Authority data approximately 6,600 buses and another regional link to the area. The Farley Post Office 176,500 passengers utilize the terminal on a typical weekday. Building will be converted into a new Pennsylvania Station. New Jersey Transit buses are the major service provider The creation of East Side Access, providing LIRR trains accounting for 60 percent of these numbers. access to Grand Central Terminal in 2011, will free up some space in Pennsylvania Station. However, the Trans-Hudson Local bus service in the study area is provided by MTA-New rail tunnel is nearing capacity and will soon limit the number York City Transit (NYCT) on 16 routes. The M-42 provides of trains serving Pennsylvania Station. crosstown service along the 42nd Street corridor with alternate buses serving the Javits Convention Center during the day. The subway stations are located along Seventh and Eighth Although portrayed for clarity as two distinct routes, the M- avenues providing only a small portion of the study area with 16/M-34 is a 34th Street crosstown operated as a single route service. The Times Square subway station at Wext 42nd Street with branches and a short-turn point. The M-16 route links and Eighth Avenue serves the A, C, and E trains with Waterside with the PABT, while the M-34 serves the 34th

18 Existing Conditions

Street corridor exclusively, with a western terminus at the There is a significant amount of bus storage in the study area Javits Convention Center. The M-11 operates from utilized by the 41 bus carriers that use the PABT. During the Riverbank State Park to Bethune Street, chiefly via Ninth and midday hours, many of these buses are inactive and waiting Tenth avenues. The M-10 operates between Harlem and for the evening commute from the PABT. PABT destined Battery Park City via Seventh and Eighth avenues. Along the buses are stored in the vicinity of the PABT and across the periphery is the M-27/M-50 dual-route crosstown service on river in New Jersey. There are approximately 450 off-street West 49th and West 50th streets. The M-50 provides base bus parking spots and 50 on-street spaces in the vicinity of the service between Pier 83 (West 42nd Street) and 1st Avenue, PABT. Two of the off-street sites are privately owned and while the M-27 functions largely as a short-turn or branch have a capacity of 180 buses. Approximately 65 spaces are service south to the PABT. The M-104, also on the periphery, located inside the PABT, but will be eliminated with the links Harlem with the 42nd Street corridor, largely via development of the proposed office tower above the terminal. Broadway. The remaining spaces are located on various Port Authority owned properties and leased to carriers. The demand for New York Waterway currently operates two scheduled ferry space in Manhattan far exceeds the supply. routes from the Pier 78 Ferry Terminal, at West 38th Street, to Port Imperial and Lincoln Harbor, New Jersey. Ridership was In addition to the buses using the PABT, there are also charter about 9,000 persons per weekday but has increased buses that heavily utilize the area. The charter buses seek subsequent to the events of September 11, 2001. New York layover space as well during their periods of inactivity. They Waterway anticipates ridership to increase to 21,000 daily primarily park at on-street locations within the study area or patrons by the year 2003. Construction of a new six slip Ferry just north of West 42nd Street. There is a great demand among Terminal at Pier 79 to accommodate current and future these charter operations for permanent off-street layover ridership levels is expected to be completed by 2004. space on the West Side.

Parking and Bus Storage Pedestrian Circulation Based on the February 2001 Departments of Consumer East of Ninth Avenue pedestrian activity is high; however, Affairs and City Planning data, there are 244 off-street west of Ninth Avenue the number of pedestrians decreases parking facilities with a total parking capacity of 30,212 substantially. The Department conducted pedestrian counts at spaces within the transportation study area, of which 9,000 35 intersections in the study area in December 2000. The spaces are located within the Framework study area. In 2001, analysis of these counts indicated that all sidewalks, corners, the Department conducted a survey of parking resources in and crosswalks west of Eighth Avenue are operating at LOS the transportation study area and found that 7,115 parking C or better. spaces were unoccupied at noontime on a weekday.

19 Existing Conditions

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Convention W 37TH ST Center W 37TH ST On-Street Pier 76 6TH ST W 36TH ST W 3 Bus Parking

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20 Existing Conditions

Development Activity and Planning Initiatives square foot easement will be required to stage the operation. There are a number of projects that are under construction or This construction will not interfere with the operation of the planned for the area. These are shown on Figure 10, and they MTA Rail Yards. Upon completion of the water tunnel, a include primarily mixed-use and transportation related 8,250 square foot easement directly above the shaft site will developments. The majority of the projects are on the West remain in perpetuity. However, construction or development 42nd Street Corridor and include an approximately 1 million could occur above this easement so long as a vertical square foot office tower atop the northern portion of the clearance of 25 to 30 feet is provided. PABT, theater row development of theaters and a residential tower at Dyer Avenue, and two residential towers at Tenth Planning Initiatives and Major Proposals Avenue and Eleventh Avenue. In addition to those projects on A number of planning initiatives and major proposals have West 42nd Street, there are numerous other residential projects been put forth for this area. Central to these proposals is the on the northern side of the street as well. Transportation plan put forward by Mayor Giuliani which identifies this area projects in the area include Route 9A reconstruction, for expansion of the CBD coupled with a major sports and transformation of the Farley Building into a world class train exhibition facility over the MTA Rail Yards and generated this station, and a new ferry terminal at Pier 79. study.

New York City’s Third Water Tunnel The New York City 2012 Olympic Committee (NYC 2012) New York City has been planning for years to improve its has developed a comprehensive proposal for bringing the water delivery system from Upstate New York. Since 1966, Summer Olympics to New York City in 2012. The Olympic the Department of Environmental Protection has been Stadium and park would be located atop the MTA Rail Yards. planning for the construction of a third water tunnel. The Committee has proposed, on the western rail yard, an Construction on several stages of this project has already been Olympic Stadium that would later be used for professional completed. The future stages require tunneling and creating football and exhibition facilities to accommodate an expanded several shaft sites throughout the City. One of these shaft Javits Convention Center. A new Madison Square Garden, a locations is on the MTA Rail Yard site at Tenth Avenue and media center, two hotels, and a regional open space of 6 acres West 30th Street. would be located on the MTA Rail Yards between Tenth and Eleventh avenues. Transportation improvements are key This location will be utilized as a staging area for the elements of the proposal, including the Number 7 Subway excavation and construction of the entire length of the water line extension, extending LIRR service and providing Metro tunnel in Manhattan south of Central Park. Construction will North service to the area. As part of the transportation plan, begin in 2002 and it is expected to take roughly eight years NYC 2012 suggested a new boulevard from West 34th to West until completion. During this construction period, a 146,000 39th streets between Tenth and Eleventh avenues.

21 Existing Conditions

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F MTA Bus Depot L W 40TH ST E W 40TH ST

W T Proposed W 39TH ST W 39TH ST Projects Pier 79 W 38TH ST W 38TH ST Pier 78 Javits

Convention W 37TH ST Center W 37TH ST Barishnakov Studios Study Area Pier 76 36TH ST W 36TH ST W Boundary Plaza

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22 Existing Conditions

The New York Jets have also signaled their interest in a sports and exhibition facility over the MTA Rail Yards. The New York Jets recently released a plan for a multi-use sports and entertainment facility over the western portion of the MTA Rail Yards. This facility would accommodate football games roughly ten times a year, provide a venue for entertainment and sporting events, and meet the expansion needs of the Javits Convention Center by providing additional exhibition and meeting space. With the southern expansion, the floor space available for convention activities would be increased from 900,000 usable square feet to approximately 1.1 million square feet.

Madison Square Garden is currently evaluating relocation options. The study area provides opportunities for relocation that are not available elsewhere in mid-Manhattan. Relocating Madison Square Garden would allow for redevelopment of the superblock over Pennsylvania Station, where rail and subway lines converge at the country’s busiest rail and transit hub.

In recognition of the importance of the study area and the potential it has in helping meet the City’s future growth needs, a number of other planning studies for portions of this area have been completed or are underway. These include a study sponsored by a local community group and Community Board 4, and a study focusing on the MTA Rail Yards sponsored by the Manhattan Borough President. All of these efforts recognize the role played by transportation facilities, particularly the MTA Rail Yards and Lincoln Tunnel and its approaches, in defining the area west of Ninth Avenue.

23 Opportunities and Issues

OPPORTUNITIES AND ISSUES source of significant job growth, and a neighborhood with new housing, open space, and waterfront access. The following opportunities provide a basis for developing a This area presents significant opportunities for meeting a framework for Far West Midtown. In order for the area to number of the City’s future development needs, helping to realize its immense potential, however, a number of promote the long term health of the City’s Midtown Central significant issues, particularly those relating to transportation, Business District (CBD) while strengthening the City’s tax must be addressed. base, and accommodating new sports and exhibition facilities and expanded opportunities for housing and open space. One of the area’s key strengths is its strategic location adjacent to Opportunities the Midtown CBD. Because of its location and proximity to major transportation facilities, the area provides an Central Business District and Office Growth opportunity for the expansion of the central business district The Midtown CBD is the world’s largest and most important as well as to accommodate a range of new uses that are not business district. However, both Midtown and Downtown easily located elsewhere in Manhattan and that require access (the third largest business district in the country) have limited to Midtown. sites available for large floor plate office buildings. The tragic events of September 11, 2001 have altered the Downtown In addition to its location adjacent to Midtown, the area is CBD and will lead to opportunities for modern, large floor proximate to two major transportation nodes – Pennsylvania plate office buildings in the Downtown area. To maintain its Station and the Port Authority Bus Terminal – as well as the pre-eminence as a world city and to ensure the continued planned rail station at the Farley Building. While the western growth of the City’s economy, suitable locations are also portions of the area are distant from these transit hubs (the needed proximate to Midtown for large-scale office distance from Pennsylvania Station to Tenth Avenue is similar development. Except for this area, the growth and expansion to the distance between the Lexington Avenue subway and of Midtown is constrained by Central Park to the north, the First Avenue), the eastern portion is one of the most accessible residential area of Clinton to the west, north of 42nd Street, locations in the New York Metropolitan Region. No other and by residential neighborhoods to the east and south. location in the City or the Region can match this area’s connectivity to other parts of the City, New Jersey and Long The robust economic growth that New York City experienced Island. during the past six years was accompanied by only a two percent (four million square foot) increase in office space and This area has the potential to become an extension of the hotels in Midtown. Even at this level of growth, the ability to Midtown CBD with convenient and seamless transit access, a retain firms and accommodate large scale office uses is

24 Opportunities and Issues constrained by the limited availability of large assembled Jacob K. Javits Convention Center Expansion development sites and the high cost of land. Almost since its completion, the New York Convention Center Development Corporation has expressed the need to According to one forecast, prepared for the New York expand the Javits Convention Center in order to remain Metropolitan Transportation Council in December 2000, competitive in the convention industry. The existing facility, Manhattan will gain 328,000 and New York City 555,000 new which opened in 1986, was the last major development jobs by 2025. Providing office space to accommodate the constructed in the area. At 900,000 square feet, it will drop to new workers projected for Manhattan will require roughly 80 the 17th largest facility in the nation by December 2004 as million square feet of new office and other commercial space. other exhibit halls expand. Possibilities exist for the Javits While this projection of new jobs may be larger or smaller Convention Center to expand as well, primarily to the north than the ultimate demand, it is essential for the well-being of and south. the City’s residents to provide opportunities to develop the physical infrastructure necessary for their future employment. The Javits Convention Center has not released any plans While a portion of the future growth may be accommodated indicating how it seeks to meet those objectives. Plans in Midtown, Downtown, and emerging CBDs in Brooklyn produced by NYC 2012 envision the Javits Convention and Queens, a large share will need to find other locations Center expanding to the north with the northern most portion within Manhattan. This location has the ability to along West 42nd Street. The New York Jets proposal for the accommodate a significant share of this projected need. westernmost MTA Rail Yard, would accommodate a Javits Convention Center expansion to the south in the form of a Sports and Entertainment Uses multi-use complex, while also expanding north to West 42nd Significant land area is needed for a relocated Madison Street. In addition, the prospects for enhancing the Javits Square Garden arena or a new sports/exhibition facility. Few Convention Center as a world class facility would be further sites large enough for this purpose with good transit access strengthened by the rejuvenation of the surrounding area. exist in New York City. The MTA Rail Yards provide the unique opportunity for New York City to accommodate such New Housing Opportunities facilities in the heart of Manhattan without the displacement The core of the existing residential uses is located between of businesses or residents. Recognizing this unique Ninth and Tenth avenues from West 34th to West 41st streets. opportunity, Mayor Giuliani has proposed the development of This area also contains a number of underbuilt and vacant a multi-use exhibition and sports facility on the westernmost parcels, as well as subsurface streets over which platforms MTA Rail Yard site. The planned extension of the Number 7 could be built to provide new opportunities for residential and Subway line could provide transit access directly adjacent to mixed-use development. Unlike the MTA Rail Yards and the new facilities. area between Tenth and Eleventh avenues, the potential

25 Opportunities and Issues development sites in the area between Ninth and Tenth area, especially as future development occurs. Creation of avenues do not provide significant opportunity for large-scale regional, commercial, and neighborhood open spaces would commercial uses. The potential development sites are small benefit current and future residents as well as future workers. because of existing residential and commercial uses, as well as the transportation infrastructure in this corridor. New The redevelopment of this area provides an opportunity to mixed-use development could strengthen the residential and increase and enhance visual and physical access to the mixed-use character of the area and help alleviate the chronic Hudson River Park and waterfront. The MTA Rail Yards housing shortage in Manhattan. provide the greatest potential for a regional open space in this area. Pier 76, though currently used as a tow pound, provides Urban Design an opportunity for a regional waterfront open space. The This area presents an opportunity to establish a unique urban Hudson River Park Trust legislation mandates that 50 percent form in conjunction with planned growth. Unlike Midtown of this site be conveyed to the Trust for open space uses once and Lower Manhattan, Far West Midtown has no strong the tow pound is relocated. historical built context. Apart from a few distinctive and idiosyncratic buildings, located mostly on the periphery, there is no characteristic building form in the area. The absence of Issues an existing built context west of Ninth Avenue allows the While this area provides significant opportunities for meeting opportunity to establish a prevailing character for the area. the City’s growing need for space, and for accommodating a wide mix of new uses, the development of Far West Midtown Far West Midtown, with its potential for large site presents enormous planning challenges that must be assemblages and large building floor plates, could have a addressed as part of an overall plan for the area. strong new character in the future. The future context of this area can be directed to define the character of the streets and Existing Zoning avenues as well as the massing and heights of buildings. At The existing zoning has remained relatively unchanged since the same time, a new regulatory structure could encourage 1961 when this area served the industrial activities on the new and interesting bulk forms through a careful and flexible waterfront. Today, the zoning no longer reflects the existing design program. uses in the area or the potential role the area can play in the future. The area’s predominantly low density manufacturing New Open Space and Waterfront Access districts present obstacles to its long term growth and The potential development sites provide opportunities not development. only for construction of buildings, but also for the creation of a variety of open spaces. More open space is needed in the

26 Opportunities and Issues

Limited Public Transit Access management and new technology such as intelligent Though the study area contains several of the nation’s best transportation systems (ITS) within the Lincoln Tunnel. transit facilities, most of the area is not adequately served by them. The existing transit facilities provide service primarily Traffic congestion in the study area is most severe during the to the area east of Ninth Avenue. The PABT and Pennsylvania evening exodus of vehicles from Manhattan. The problems Station provide excellent transit service to the entire New are not limited to the Lincoln Tunnel and its access ramps, but York Metropolitan Region, but are not well connected to the they directly impact the Manhattan street grid which serve as blocks west of Ninth Avenue. Even with the creation of a entry points to the tunnel. Future plans for the area must new Pennsylvania Station in the Farley Building, accessibility address the congestion around the Lincoln Tunnel entrances to the area west of Ninth Avenue will be limited. Similarly, through improved traffic patterns and the amelioration of New York City subway service does not run west of Eighth congestion. Avenue and local bus service in the east-west direction is limited to West 34th and West 42nd streets. Due to this lack of Pedestrian Circulation access, the ferry service located at the periphery of the study With the potential for new, large-scale development, as well area on West 42nd Street depends on its own system of shuttle as the increased attractiveness of the waterfront, the ability to buses to distribute its passengers throughout Manhattan. accommodate increased pedestrian movement and circulation must be addressed. Pedestrian circulation - particularly in the The existing transit infrastructure west of Ninth Avenue, for east-west direction – is impeded in part by the breaks in the the most part, cannot accommodate high-density street grid and conflicts with traffic movements. An improved development. The ability of the transportation infrastructure pedestrian infrastructure and environment is integral to the to provide additional service to the western edges of the study transportation plan for the area. area is critical to determining the appropriate development in this area. Parking The transportation study area contains over 244 surface level Vehicular Traffic Congestion parking lots with over 30,200 parking spaces of which 9,000 The Lincoln Tunnel is one of three vehicular connections are located in this area. The City has a two decade-old between Manhattan and New Jersey. The tunnel is the most parking policy that seeks to discourage vehicles from entering direct access point to Midtown Manhattan and as such it Manhattan. High-density transit-oriented development in this handles an enormous amount of automobile, bus, and truck area would have a favorable trip generation rate that is equal traffic. The Lincoln Tunnel operates at or above capacity to or greater than the rate in the most transit-oriented locations during both morning and evening rush hours. Future in the country. Nevertheless, some additional vehicle trips improvements are expected primarily through better traffic can be expected. The loss of existing parking spaces due to

27 Opportunities and Issues development of parking lots, coupled with the demand for new spaces resulting from the new development is a critical issue.

Bus and Truck Storage The existing demand for bus layover parking currently exceeds the supply. The buses that layover include commuter buses using the PABT and charter buses that drop off passengers elsewhere in Midtown, particularly in the Theater District. A large portion of these charter buses currently use the streets to the north in both the Theater District and Clinton for layover. Future redevelopment is likely to decrease the availability of space for bus layover sites, even though some are under Port Authority ownership. Traffic planning for the area must address the issue of bus layovers and on-street parking in order to address street congestion and neighborhood issues. In addition, the potential expansion of the Javits Convention Center to the north could necessitate the relocation of the MTA West Side Bus Depot, which houses and provides maintenance for approximately 250 buses.

The truck marshaling yards, located between West 33rd and 34th streets, accommodate the storage of approximately 150 trucks that deliver to the Javits Convention Center. This space is currently insufficient for large events resulting in trucks lining the service road of Route 9A and local streets. Future expansion of the Javits Convention Center’s exhibition space must be accompanied by expanded space for truck marshaling.

28